Future Development Strategy - Proposed SmartGrowth - Have your say by 5 November 2018 Find out more at www.smartgrowthbop.org.nz
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Proposed
SmartGrowth
Future
Development
Strategy
Have your say by 5 November 2018
Find out more at www.smartgrowthbop.org.nz
1
Mihi
Tūngia te ururua
Kia tupu whakaritorito
Te tupu o te harakeke
He hōnore, he korōria ki te Atua
He maungārongo ki te whenua
He whakaaro pai ki ngā tāngata katoa
Korōria ki tou ingoa tapu
Ki ngā tini mate, haere ki te huinga o te kahurangi
Okioki, tau ai.
Korihi ake ngā manu
Tākiri mai i te ata
Ka ao, ka ao, ka awatea
Ti hei mauri ora
E nga maunga, e nga awa,
E nga rāngai
Mai ngā Kuri ā Wharei ki Otamarakau
Tena koutou, tena koutou, tena koutou katoa
Clear away the undergrowth
So that the new shoots of the flax will grow
Honor and glory to God in the highest
Peace on earth, and good will toward men
May your name be glorified
We acknowledge those who have passed
Joining our loved ones, be at rest
Tohu
Birds sing at the morning dawn
The shape of the tohu (motif) is the rae And the light has broken into a new day
puta (whale tooth), which reflects our Behold there is life
marine coastal environment. The four koru
represent the SmartGrowth partnership. To every mountain, river
The remainder of the illustration references And every relationship represented
the moana and people with a nod to From Waihi Beach to Otamarakau
the geography - mai Nga Kuri a Wharei We greet and acknowledge you
ki Otamarakau from Waihi Beach to
Otamarakau.
Cover photo courtesy of Bay of Plenty Regional Council
2
Contents
Foreword 5 Rural Economy 23 Can we meet demand? 46
Kupu Whakataki How early do we need to start 46
Tangata Whenua Perspectives 24 planning for new capacity?
and Opportunities Finding the balance between going 47
Executive Summary 7 up and going out
Whakarāpopototanga Minimum targets 25 Managing uncertainty 47
Purpose of the Strategy 7
Our Future Development 26
Our Growth Challenge 7 Making Sure We Are On Track 48
Transport 7 Strategy
Arotake
Compact City 7 Te Wāheke
Medium Term Growth Areas 8 Monitoring 49
Compact City 27
Mitigating the Key Risks 8
Tangata Whenua 9 Funding, Partnerships and 50
Compact City - Tauranga 29
Long Term Growth Areas 9
Urban Strategy Other Tools
Engagement and Partnerships 9
Funding 50
New Growth Areas - 32 Partnerships 51
Introduction 11 Greenfields Other Tools to Meet the Needs of 51
What happens when Tauranga City 32 Our Community
What is the SmartGrowth Partnership? 11
reaches its boundaries? Case Study: Special Housing Areas 52
Why are we preparing this Strategy? 11
This Proposed Strategy refines the current 11
SmartGrowth Settlement Pattern Our Infrastructure Challenge 34 Being Ready For Change 54
How this Strategy was developed 11 Other Tools
Transport 36
National Context 12 Three Waters 40 Conclusion 56
Kupu Whakatepe
Sub-Regional Issues 14 Community Infrastructure 42
Schooling in the sub-region 42 Glossary 58
Our Development History 16
Key Risks to Delivering 44 References 59
The Growth Challenge 18
Sufficient Development
Can’t we just stop growing? 18
Capacity Appendices 59
Population 19
Demographics 20
Employment 22
3
SmartGrowth Strategy Vision: Ki te kahore he whakakitenga,
Western Bay - A great place to live, ka ngaro te iwi
learn, work and play. Without foresight or vision the
people will be lost
SmartGrowth desired outcomes
Strengthen Grow a Integrated Build the Sustain and Recognise
Visionary sustainable Planning and community improve the cultural identity
Leadership and economy the Settlement We work proactively environment and change
Collaboration Our economy is thriving, Pattern and in partnership with We work together to We realise economic
growing, diverse and the community to make protect and enhance and social opportunities
We have visionary, We all work from western Bay active,
collaborative leadership, sustainable. the same long term our distinctive natural for tangata whenua
vibrant, connected, environment. while protecting cultural
a strong partnership planning blueprint which caring, healthy and safe.
and provide effective incorporates planning identity.
advocacy for land use, transport
and other infrastructure
in an efficient and
affordable way.
New Zealand’s Integrated Planning Framework
Resource Management Act ‘Four Wellbeings’
Land Transport Management Act for current and
future generations
Local Government Act Environmental Economic Social Cultural
4
Katikati SmartGrowth Bill Wasley
Area SmartGrowth
Tauranga Independent Chair
Te Puke
Mayor Greg Brownless
Foreword
Tauranga City Council
Kupu Whakataki
Mayor Garry Webber
We’re growing fast and we need to work together to plan and manage it. Western Bay of Plenty
District Council
Tauranga City, Western Bay of Plenty District Agency and the Bay of Plenty District Health Board.
and Bay of Plenty Regional Councils and tangata The SmartGrowth Forum members are critical parts
whenua, together with implementation partners of the partnership too and they have continued to
have been working together under the SmartGrowth contribute strongly to the development of settlement
umbrella since around 2000 helping make the pattern work over the years.
western Bay of Plenty a great place to live, learn,
We’re faced with some major challenges in this work
work and play. Chairman Doug Leeder
– delivering good transport infrastructure, providing
Bay of Plenty Regional
While this Future Development Strategy is required affordable housing in a range of styles, protecting
Council
by the Government, it’s also a continuation of the productive rural land, caring for the environment,
work we’ve been doing since the launch of the preparing for climate change and natural hazards,
first SmartGrowth Strategy in 2004. Population providing better opportunities for tangata whenua
growth is predicted to continue here and we believe and ensuring robust utilities such as wastewater,
that we can best meet the needs of the people stormwater and drinking water and associated
and communities if we continue to work in this social infrastructure.
partnership approach. Yes, it’s councils and tangata Buddy Mikaere
It is imperative that the SmartGrowth partners
whenua at the heart of this work but we also work Combined Tangata
and government agencies work collaboratively to a
with agencies such as the New Zealand Transport Whenua Forum Chair
strategically aligned and consistent set of objectives
5
and investment programmes. Alignment
between this Future Development Strategy and
the following key policy instruments is critical to
deliver integrated land use and infrastructure:
• National Policy Statement on Urban
Development Capacity 2016
• Government Policy Statement on Land
Transport 2018
• the Government Cabinet Paper on the
Urban Growth Agenda released 6 August
2018
• the SmartGrowth sub-regional settlement
pattern, and
• the activities and priorities in the Bay of
Plenty Regional Land Transport Plan 2018. We are in a transition phase between previous not support and assist with implementation of
policy frameworks and moving forward on an this Proposed Strategy then the partners will
We do not have good alignment between the
emerging direction. There is a need to find a review it before progressing it further. There is
growth that is occurring in our sub-region
way which addresses current gaps in providing more detailed transport planning work continuing
and transport investment. We are committed
an integrated land use and transport approach in parallel with consultation on this Proposed
to presenting a unified voice in identifying
and providing for future growth. This places at Future Development Strategy. This work will be
key transport issues and working together
significant risk provision for future housing and incorporated into the final version. The partners
with the New Zealand Transport Agency and
realising the economic potential of the sub-region. wish to be quite upfront that there are transport
Central Government to find workable solutions
The recently completed capacity assessment has investment challenges that cannot be put to one
for the sub-region. The recent Government
indicated that there are housing land constraints side, which are integral to successful strategy
announcements around the Urban Growth
which need to be addressed to avoid potential implementation.
Agenda provides a good opportunity for us to
impacts on house prices in the future.
address these issues. A key focus going forward This proposed document sets out all of these
will be on getting a much better alignment and It is essential that investment in an integrated challenges and opportunities and we welcome
improved land use and transport integration. transport approach is undertaken that provides for your feedback on whether you think we’re on the
a sustainable, safe and efficient transport network. right track.
However, if transport investment decisions do
6
Executive Summary Ki te kahore he
whakakitenga, ka ngaro
Whakarāpopototanga te iwi
Without foresight or vision
Purpose of the Strategy due to tourism growth and influxes of seasonal the people will be lost
workers required for the horticulture industry.
Tauranga City and the surrounding Western
Bay of Plenty District is anticipated to grow In order to provide capacity for new homes, rural
significantly over the next 30 years. To ensure land will be converted to new urban areas (referred
growth. The effects of growth are already being
we meet the needs and demands of our growing to as ‘greenfield’ development). New development
acutely felt by residents as the transport system
community we need to plan for this growth. This will also occur within the existing urban area of
reaches capacity, despite significant recent
proposed strategy outlines how we will work to Tauranga.
investment in transport infrastructure.
ensure we provide sufficient development capacity
Making sure this is a great place to live as we
for new homes and businesses to meet the needs Compact City
grow is very challenging for the SmartGrowth
of our communities. We also need to meet the
partners and places To meet the growth challenge, it is essential
National Policy Statement
a continual strain on that new growth delivers a high quality compact
on Urban Development
infrastructure as councils urban form. This will improve the quality of life for
Capacity (NPS-UDC), Tauranga City and the surrounding try to keep pace with the residents and reduce the environmental footprint
which requires councils
in high growth areas
Western Bay of Plenty District is demands of growth. of growth and also best support a sustainable and
to provide sufficient anticipated to grow significantly effective transport system.
over the next 30 years. To ensure Transport
development capacity.
we meet the needs and demands To best support our goal for a sustainable and
Coordinated delivery
Our Growth quality place to live, we need to think differently
of our growing community we of necessary transport
about where houses are built. Currently, fewer
Challenge need to plan for this growth. infrastructure is needed
than 20% of new housing development occurs
to support growth in
In the next 30 years within the existing Tauranga urban area. Yet
the right place at the
we expect to reach a we need to see more of this is the form of
right time. Transport
population of nearly 250,000. This means we will development if we are to sustainably manage
infrastructure is particularly challenging as it is
need around 43,000 more homes with around growth. Creating a compact city is a major focus
expensive to implement and there is also a highly
80% of that growth being within Tauranga city. for SmartGrowth and will be led by the Tauranga
dynamic two-way relationship between the way
Our new homes will need to meet the needs City Council through the draft Tauranga Urban
the sub-region grows and the transport system
of an ageing population and also address the Strategy that is also open for submissions. The
that supports it. How well we integrate transport
increasing challenge of our people being able to Tauranga Urban Strategy aims to see more homes
and land use will have the biggest influence on
afford adequate housing. Demand for temporary built in and around our current town centres,
the sustainability and affordability of continued
accommodation is also expected to increase while ensuring our town centres are easy and
7
attractive places to live. The first area of focus The proposed large greenfield areas of Te Tumu,
will be the central Te Papa peninsula extending Tauriko West and Omokoroa will provide capacity
from downtown Tauranga to Greerton. Any for most new homes for at least the next 10-15
proposed changes to existing neighbourhoods will years. These areas must be rezoned and enabled
involve extensive engagement with the affected for development as soon as possible because
communities. development capacity is running out. All three
areas face significant risks that may compromise
Medium Term Growth Areas their timing and delivery. No alternative greenfield
areas are available in the medium term that are
New greenfield growth areas will provide for the sufficient to meet the projected scale of demand.
majority of growth for at least the next ten years To meet the NPS-UDC, these three medium
and will need to deliver more homes at higher term greenfield areas need to be rezoned for
densities. Greater population density supports development by mid 2021.
more frequent public transport services, which
reduces congestion on the road network and Mitigating the Key Risks
creates a more efficient transport network overall.
The greenfield areas will also provide for a mix As we grow it is critical we work with our key
of supporting facilities, services, schools and partners including the NZ Transport Agency and
employment. tangata whenua to mitigate the risks outlined
below and ensure we can enable the required
Critical Medium Target Year
Potential Yield Key Risk
Term Growth Area for Delivery
Te Tumu 2021 7,700 homes Access through multiply-owned Māori land
Tauriko West 2021 3,000 homes Transformational transport programme – SH29
Omokoroa 2021 2,400 homes Transformational transport programme – SH2
8
The proposed work
programme includes
specific consideration of
Māori rural land and urban
development the local economy as iwi
marae locations, as well as
capacity on time. look to invest.
In particular, ongoing engagement with
transformational tangata whenua. The proposed work
corridor-level programme includes
transport projects specific consideration of
are urgently required Māori rural land and urban
in both the western and northern corridors. It is marae locations, as well as ongoing
essential that there is commitment and priority engagement with tangata whenua.
given to these projects through the National Land
Transport Programme so that delivery can be Long Term Growth Areas
Engagement and Partnerships
accelerated, particularly given the long lead-in Beyond the next ten years, a range of options can
time for projects of this scale. If these projects provide further capacity for new homes. The next As change happens throughout the western bay,
are not delivered, development capacity in the generation of growth areas will then be confirmed ongoing community engagement will ensure that
sub-region will fall well short of projected demand through a full review of the SmartGrowth Strategy the best qualities of our sub-region are retained
beyond 2021. and the Future Development Strategy in 2021. and enhanced as we grow. All residents have a
responsibility to engage and shape our future
Tangata Whenua Monitoring will be undertaken regularly as urban areas.
required by the NPS-UDC to track how the
Throughout the development of this strategy There will be opportunities for partnerships
housing and business development market
tangata whenua have highlighted the importance across councils, Central Government, tangata
is functioning. The economics that affect
of ensuring opportunities for housing and whenua, social housing providers and the private
redevelopment within the existing Tauranga urban
business activity on Māori ancestral land in a way development sector to achieve the aspirations
area will be closely monitored. This will allow the
that allows for ownership to be retained. More contained in this strategy.
councils to both observe and anticipate the rate of
broadly, there is a need to address issues with
redevelopment. Councils can then respond at the
housing and employment that disproportionately
right time with the delivery of further development
affect Māori. Future Treaty settlements may affect
capacity in intensification areas and greenfields.
9
Auckland
Region
50.4%
Population
1,657,000
of NZ’s population
lives in the combined
Auckland, Waikato and
Bay of Plenty Regions.
41%
of NZ’s exports go through
the Port of Tauranga
Waikato Bay of Plenty
Region Region
High-Growth
Population Population
Urban Area
460,000 300,000
Medium-Growth
Urban Area
10Introduction
The western Bay of Plenty sub-region sets the strategic vision and direction for Refining the current Settlement Pattern
is one of the fastest growing areas in managing growth in the western Bay of Plenty
The SmartGrowth partnership created the first
sub-region. The partnership is underpinned by
New Zealand. settlement pattern as part of the SmartGrowth
Treaty of Waitangi principles.
High rates of population and economic growth Strategy in 2004. The settlement pattern has been
create constant changes to our urban progressively reviewed and updated
environment to reflect the evolving since then, with recent updates
needs of our communities. When in 2013 and 2016. This proposed
we plan for growth and change we
The purpose of the Future Development Strategy is to set strategy reflects the latest settlement
must provide for our communities out how the SmartGrowth Partnership will manage growth pattern and updates it to meet the
social, economic, environmental and over the next 30 years to provide for our communities requirements of the NPS-UDC.
cultural wellbeing. Existing and future environmental, social, economic and cultural wellbeing
How this Strategy was
residents need access to a choice of which will ensure this is a great place to live.
homes and a range of employment developed
opportunities, with good connections
This Strategy has been prepared by
between them. Communities need
staff across the SmartGrowth
access to high quality physical and social Why are we preparing this Strategy? councils. Engagement with tangata whenua, key
infrastructure, and spaces that enable people to
stakeholders and the seven SmartGrowth forums
meet, play and connect to our beautiful natural In December 2016 the Government introduced has occured throughout its development.
environment. the National Policy Statement on Urban
Development Capacity (NPS-UDC). This piece
What is the SmartGrowth Partnership? of legislation requires councils in high growth
areas to assess capacity needs for housing and
SmartGrowth is a partnership of the Tauranga
business over the next 30 years and to prepare See Appendix 4 for more detail
City Council, Western Bay of Plenty District
a ‘Future Development Strategy’ outlining how on the early engagement
Council, Bay of Plenty Regional Council and local
that capacity will be provided for. The Future process. The Strategy builds on
tangata whenua. The New Zealand Transport
Development Strategy must be reviewed every the SmartGrowth Housing and
Agency and Bay of Plenty District Health Board
three years. Business Development Capacity
are also implementation partners. SmartGrowth Assessment available at smartgrowth.bop.org.nz.
11National Context
New Zealand is undergoing a number The Urban Growth Agenda is a key priority for the expanded public/social housing, the Housing First
of changes. Government. It is focused on five key priorities initiative (increasing the supply of emergency
initially: and transitional housing for homeless people)
Its population is becoming older and more and changes to the Residential Tenancies Act to
ethnically diverse, while the nature of employment • Innovative infrastructure funding and provide better homes and more security for people
is changing and the country’s population is financing, renting.
growing very unevenly geographically. New • A planning system that supports growth and
Zealand also faces a number of challenges development, both ‘up and out,’ Spatial planning has become a strong focus for
relevant to growth management, including the Government as it provides a means of better
• Pricing mechanisms to capture the full costs
housing quality and affordability, water allocation integrating land use, infrastructure and funding as
of transport and investment in demand
and quality, rising infrastructure and servicing well as the opportunities for stronger partnerships
management,
costs, increasing disparity of wealth and between local and central government, iwi and
• Improved planning with a focus on spatial the wider community. There are also a number
reconciling the needs of the current population plans agreed between central and local
with the needs of future generations. of other existing and proposed National Policy
government and communities, and Statements that will influence this Strategy. There
Central government is strengthening its approach • Legislative coherence - linking the Resource is a new Government Policy Statement on Land
to urban development along with initiatives to Management Act, Local Government Act and Transport (GPS) now in place. The GPS provides a
support regional economic growth. It is also Land Transport Management Act. step change in land transport funding priorities.
reviewing infrastructure funding and financing
for local government. This is in recognition of the As part of implementing the Urban Growth The themes for GPS 2018 are:
constraints that are preventing local authorities Agenda, the Government has recently announced
the creation of a new Ministry of Housing and • a mode-neutral approach to transport
from effectively funding their obligations and from planning and investment decisions,
financing community expectations. For the growth Urban Development. There are also other specific
councils around the country there are significant initiatives that are part of the Urban Growth • incorporating technology and innovation
challenges arising from the need to invest heavily Agenda and housing policy in general such as into the design and delivery of land transport
in infrastructure to accommodate growth. This establishing a new national Urban Development investment, and
is further complicated by economic cycles which Authority, the KiwiBuild programme to deliver • integrating land use and transport planning
affect rates of development. 100,000 affordable homes over the next 10 years, and delivery.
12Well-functioning urban areas are vital
to improving the well-being and living
standards of all New Zealanders,
including reducing homelessness and
child poverty.
(source: MBIE Cabinet Paper on Urban Growth
Agenda, released 6 August 2018)
Climate change is also a priority for the
Government. It is currently consulting on the Zero
Carbon Bill which aims to achieve net zero carbon
emissions (as a minimum) by 2050. Achieving
this goal will require significant increases in forest
planting, significant reductions in transport and
energy related emissions, and changes in how
we use our land. The Zero Carbon Bill anticipates
that every person, business and local government
authority has a role to play.
There are other national level changes underway
which will also have an effect on local government
and how we manage growth. These include
significant three waters management reform and
investigations into local government costs and its
revenue base.
13Sub-Regional Issues
The western Bay of Plenty sub-region is currently facing a number of
challenges relating to its future development.
Aligned Growth and Infrastructure
Significant growth over a relatively short time frame has put pressure on infrastructure,
especially the transport network. The settlement pattern has been designed to have a
strong relationship with infrastructure and services. Successful implementation of the
SmartGrowth settlement pattern, new urban growth projects and other strategies
now in development are heavily reliant on infrastructure improvements, particularly
to the transport system. Given the rate at which growth is occurring, we do not
have good alignment between development and transport investment. Achieving
better alignment and stronger integration between land use and transport will
be a key focus area for the SmartGrowth partners. A critical element of this is
having agreed transport investment decisions and commitments to support
the existing and proposed settlement pattern.
Dealing with uncertainty
There are inherent difficulties in knowing in advance what development
uptake rates will be, how feasible particular developments are and
understanding the true costs. Development is a staged process which
takes some time to implement. At present there is only around 6-7
years supply of residential zoned land available in Tauranga and new
zoned and serviced capacity is at least three years away. There may
be a period of constrained supply. Long-term greenfield areas have
been identified in this strategy for further investigation. This will
allow the SmartGrowth partners to be better prepared and fully
understand the implications of developing any of these areas
in the longer term. There is a commitment to achieving a more
compact urban form through the Tauranga Urban Strategy.
However, successful implementation will be challenging. In order
to manage all of these uncertainties the SmartGrowth partners will
14continue to monitor demand and supply and make landscapes, cultural sites, biodiversity, productive more single person households. By contrast,
sure we have sufficient capacity and that we land, and it can exacerbate the impacts of natural we gain a demographic dividend if increasing
achieve the right balance between intensification hazards and climate change. Finding the balance numbers of Maori youth can support a shrinking
and greenfields. between supporting growth and development labour force in the long term. These are all factors
while ensuring the environment stays healthy will that have been considered while preparing this
Growth Funding be a major and ongoing challenge. proposed strategy and monitoring of these trends
will continue.
There are significant infrastructure costs Housing Affordability
associated with servicing new development, Development Trade-Offs
however there are limited funds and funding Housing affordability is a major issue for the
tools available to councils and the New Zealand western Bay of Plenty. The role of this strategy The existing SmartGrowth Strategy 2013 and this
Transport Agency for large-scale projects. is to ensure that there is sufficient development Future Development Strategy aim to promote
capacity to enable the delivery of housing in the the social, economic, environmental, and cultural
Tauranga City Council in particular faces most cost-effective manner, by the private sector, well-being ofcommunities. Inevitably there are
substantial costs given the infrastructure required Central Government through KiwiBuild, iwi, potential trade-offs that have to be made across
to meet growth needs. Like other high-growth social housing providers and not-for-profit sector. these well-beings in order to successfully
councils they are also limited in terms of how This strategy also aims to encourage a range of implement our strategies. High level trade-offs
much they can borrow. Central Government is housing types. have already been made in identifying the planned
investigating new tools for local government to growth areas. For example the emerging tensions
fund and finance infrastructure, however some of The SmartGrowth Leadership Group has between urban development and enhancing water
these may take time to implement. A fundamental endorsed the new Smart Housing Action quality, and similarly between urban intensification
change is required in the way urban growth is Framework, which provides a new focus for its and increased stormwater runoff. These are
funded and the solutions are needed as a matter housing work in addition to the development matters that cannot be resolved now but will be
of priority. capacity emphasis. the subject of further investigation as structure
plans are prepared and sustainable development
The Impacts of Growth Changing Demographics capacities calculated.
Along with growth and development come a On top of growth projections, emphasis must
number of impacts, particularly environmental be placed on the demographic changes that are
but also cultural and social. Growth can have unfolding. In particular, the ageing population
an adverse effect on water quality and quantity, means a declining rate of home ownership and
15Our Development
History
Mai Ngā Kuri ā Wharei ki Otamarakau settlements, rural towns and productive rural land infrastructure to ensure efficient access to New
– from Waihi Beach to Otamarakau. surrounding Tauranga City. Prior to European Zealand’s biggest export port has supported this
arrival, Tauranga Moana had a number of pattern of growth.
Tangata whenua across the western
prosperous kainga (villages). The combination
Bay of Plenty sub-region descend from of land purchases and confiscations have Tauranga is now the fifth biggest city in New
three main waka groupings, Te Arawa, contributed to the creation, form and location of Zealand, with the fourth smallest geographical
Mataatua, and Takitimu. the urban areas as we know them now. area. Housing demand at the fringe of the city has
required continued adjustment to the territorial
The traditional settlement pattern, mana-whenua Tauranga City is a relatively new city in boundary between Tauranga City and the Western
and mana-moana of the sub-region was highly comparison with the other major cities in New Bay of Plenty District, so that new urban growth
contested historically, but maintained currently Zealand. In the 1940’s it was a small town of areas could be serviced by Tauranga City’s
through close relationships based on inter- approximately 4,000 residents. Rapid growth infrastructure.
marriage and whakapapa. Samuel Marsden since that time has seen the conversion of rural
was the first European to visit the area in 1820, land on the outskirts of the city into new suburbs. In the western Bay of Plenty District, growth has
followed by missionaries, traders and then settlers. The increase in private vehicle ownership since been accommodated on the edges of the various
the 1950s has meant that the city has developed towns, complemented by high levels of growth in
The western Bay of Plenty sub region is around car based transport. Investment in roading rural- residential lifestyle blocks. Omokoroa is an
characterised by a handful of small coastal exception as it has recently grown from a small
1300 1820 1864 1911-15
Early Polynesian Nga Puhi invade Tauranga with War breaks out in the district - Gate Pa Tauranga
waka migrants muskets. and Te Ranga. Harbour Board
arrive. Samuel Marsden is the first European formed, first
250,000 acres confiscated from Māori. Tauranga
since Cook to visit Tauranga.
hospital opened.
1700 1800 1900
1769 1840 1871 1924
Captain Cook and Signatures Tauranga Matapihi
Endeavour pass to the Treaty wharf railway
Motiti Island. of Waitangi developed bridge
collected from on the completed.
Tauranga chiefs. Strand.
16Ka tiro he au heke,
e kore e hoki ki tōna
mātāpuna anō
The flowing current
moves on and will never
return to its source again
harbourside holiday village and is now quickly
expanding to become a substantial size town.
Traditional Māori communities of Whareroa,
Maungatapu, Hairini, Judea and Bethlehem
have become urbanised as Tauranga City has
grown over time. Otawhiwhi at Bowentown
and Rereatukahia in Katikati are on the urban
boundaries of their communities, and the
Maketu community is predominantly Māori.
Urban Growth 1959-2017
1939 1964 1989 2004 2015
Airport officially New Tauranga Local Government First Tauranga
opened at hospital block amalagamation creates SmartGrowth Eastern Link
Mt Maunganui. opens. Tauranga City and Western Strategy opens.
Bay of Plenty Districts. approved.
2000
1953 1978 2011-14 2018
Mt Maunganui Kaimai Crown settles Tauranga
wharf construction rail tunnel a number of is the fifth
begins. opened. Treaty claims biggest
within the city in New
sub-region. Zealand.
17The Growth
Challenge
The western Bay of Plenty sub-region, with Tauranga City at its heart is one of Population growth comes with a number of challenges, but
the fastest growing areas in New Zealand. also a number of benefits. Key challenges include increased
traffic congestion; ensuring infrastructure keeps up with
Of New Zealand’s six largest cities, Tauranga City recorded the highest rate in population growth; and maintaining housing affordability in the face
growth between the 2006 and 2013 Census at 10.5%. This is a long-established trend with of increased demand. Benefits include economic growth
Tauranga being the fastest growing area in New Zealand over the last 80 years. and development and more opportunities for education,
The key driver of population growth has been, and will continue to be, employment, and civic amenities. To ensure that we can
people moving from other parts of New Zealand and overseas. gain the benefits, we need to plan carefully for the future.
This is happening for a number of reasons driven
by economic growth, personal circumstances Can’t we just stop growing?
and lifestyle preferences.
At various times arguments have been put forward about
restraining this growth in the western Bay of Plenty sub-
region. However, population growth is also influenced
by net inward migration and increasing numbers of
international visitors. There is little that can be done at
a sub-regional level to influence these. Preventing new
Why do housing developments will not reduce the flow of people
people m moving here, but will increase house prices and rents for
ove here
? those of us that already live here. This would have flow-
Coastal
se on effects resulting in higher rates of homelessness,
beaches tting with safe,
, great fo w poverty, inequality, and poorer health outcomes. If we do
r swimm hite sandy
ing and not plan for growth, developers may request private plan
Temper surfing.
ate clim changes which can result in sporadic and poorly integrated
hours. ate, with
high sun greenfield growth.
shine
Access
to
opportu a wide range of
nities. recreatio
Proximit
nal He pukenga wai, he
yt
the ‘gold o Auckland and
en trian located pukenga tāngata
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and Bay ’ of the Aucklan
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d, A flood of water, a
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tunities flood of people
New Ze .
aland’s la
rgest ex
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18Population
184,000 people and 80,000 dwellings in Western Bay of Plenty Sub-Region in 2018
2018-2028 2028-2038 2038-2048
210,800 (+26,800 people) 234,000 (+23,200 people) 248,400 (+14,400 people)
96,400 (+16,400 houses) 112,100 (+15,700 houses) 121,600 (+9,500 houses)
Total sub-regional population increase past and future
250,000
200,000
150,000
The rapid growth of the
last 20 years will slow
only gradually over the
100,000 next 30 years
1996 2001 2006 2013 2018 2023 2028 2033 2038 2043 2048
19Projected demographic change in our sub-region 2018-2048
Over three
quarters of the
population growth
to 2048 will be
of residents aged
65+
2018
12% 12% 21% 40% 15%
2028
10% 10% 19% 39% 22%
2038
9% 9% 16% 39% 27%
2048 38% 30%
8% 8% 16%
0 50,000 100,000 150,000 200,000 250,000
Population
Key
Demographic change
highlights the need for
Age 0-9 Age 10-19 Age 20-39 Age 40-69 Age 70+ affordable and diverse
housing linked by public
transport, walking and cycling
infrastructure.
20In 2048 ...
Less people will own
the home they live in
Projected change in home ownership
between 2017 and 2048
80% Western Bay District
Rate of owner
Tauranga
occupation
50%
1996 Year 2051
100% growth in couple-only and
one-person renter households
Couples without children More renter-occupied dwellings with people over 65
projected to increase
Tauranga - 70% (11,800) up 182%
Western Bay District - 35% (3,000) up 222% in Western Bay
in Tauranga (6,830) District (1,970)
One-person households More households in
projected to increase general of 65+ years
Tauranga - 83% (11,000)
From 32% in 2017 to
Western Bay District - 64% (3,200)
43% in 2048
21Employment
Employment Projections by Sector (permenant full time equivalent positions)
60,000
Key
50,000 Agriculture
40,000 Industry
30,000
Retail
20,000 Services
10,000 Education
0
2018 2028 2038 2048
Employment Tauranga
Western
Bay of Plenty
30,610 6,230
new jobs
By 2048
new jobs
employment
in...
46% 33%
More than half of job growth is
expected from services.
22Rural
Economy
The sub-region’s productive rural land resource is a major
contributor to the economy.
Agriculture, forestry and fishing is the largest individual sector in the
Western Bay of Plenty District economy, accounting for 20% of GDP (2017).
The kiwifruit industry makes up the largest share of that, contributing
$867 million to the wider Bay of Plenty regional economy. Around half of
all kiwifruit grown in New Zealand comes from the Western Bay of Plenty
District, with the majority of the district’s crop being from the Te Puke area.
The kiwifruit industry is a significant employer in the sub-region, providing
permanent full-time equivalent (FTE) positions for about 6,000 people.
There are a similar number of seasonal staff. While some of the seasonal
workforce live within the sub-region, the majority are sourced from other
regions of New Zealand or internationally.
The kiwifruit industry is projected to grow significantly over the next
decade, both in increased hectares and in revenue. The current 140 million
trays of kiwifruit is expected to reach 190 million in 10 years, and GDP is
expected to increase to $2.04 billion by 2030. In addition to the existing
workers, a further 12,000 workers will be required to service the industry
by 2030, most of which will be seasonal workers. This has implications in
terms of the facilities required to process the fruit, and accommodation
for seasonal workers. Growth in the industry has been factored into our
capacity assessment, but the situation will need to be regularly monitored
to ensure there is enough housing and business land to meet needs. While
the kiwifruit industry has the highest level of projected growth, there is also
rapid growth in avocados and other emerging horticulture crops such as
blueberries.
A high proportion of the kiwifruit produced in the sub-region is by Māori
owned business entities. It is estimated that Māori have investments in
the industry totalling more than $300 million, and there are at least 2,400
FTE of Māori employed in the industry. Revenue for Māori enterprises are
estimated to increase from $118m to $278 million by 2030, with total wages
and salaries for Māori projected to increase from $22 million to $52 million.
23Tangata Whenua
Perspectives and
Opportunities
Tangata whenua have a special infrastructure provision. Within existing urban require partnership arrangements with other Land
relationship to their ancestral land. areas, the expansion of papakāinga to provide Trusts, iwi, government or the private sector. An
for the growing hapū is severely constrained by example of advance planning and innovation is
Areas with marae, papakāinga and a
the surrounding neighbourhood. Urban Māori the Ngā Pōtiki “Manawa” development estate in
concentration of Māori land typically have communities such as Whareroa, Maungatapu, Wairakei. This is a 240 lot sub-division that sets
high proportions of Māori living there. Hairini, Judea, Bethlehem and Wairoa are severely aside 30% of the lots for Ngā Pōtiki beneficiaries.
constrained by land supply for papakāinga The development provides a range of housing
Māori land title is very different from general
development. These types typologies to cater for the
title as it has a unique set of restrictions and
of constraints present market as well as the Ngā Pōtiki
protections, which are intended to ensure that the
unique opportunities to beneficiaries.
land won’t be alienated, and makes development
engage in conversations
While there are aspirations
very difficult. for land development, While there are aspirations
regarding higher density
There are approximately 22,000 hectares of redevelopment as a tangata whenua are mindful for land development, tangata
potential solution. of the need to balance their whenua are mindful of the
multiply-owned Māori land within the sub-
need to balance their kaitiaki
region or 11% of the total land area. While much
In addition to Māori land,
kaitiaki responsibilities to responsibilities to their
of the Māori land is rural (96%), there are small
there has also been, and will their culture, environment, culture, environment, and their
pockets of Māori land within urban areas which and their communities.
continue to be, transfers communities. The protection
are often associated with an urban marae and
of land back to iwi/hapū and acknowledgement of
papakāinga. There are also significant areas of
through Treaty settlements. the relationship of tangata
Māori land that are on the edges of Tauranga City
Treaty settlements can whenua to their ancestral lands,
and some of the towns. These areas present both
provide further opportunities for economic waters, sites, waahi tapu and other taonga is a
challenges and opportunities for the land owners
development, where settlement land is located basic cultural tenant. This includes managing
to provide housing for their whānau and economic
in urban areas and development aligns with the development aspirations and potential adverse
development for their community. In the case of
aspirations of iwi/hapū. Some Māori Land Trusts effects on sites of cultural significance, cultural
papakāinga, hapū have the challenge of increasing
are now investigating alternative development heritage, cultural landscape values, culturally
the scale of development. This is hampered
models and solutions to suit their particular sensitive ecology, as well as important waterways
by access to finance, multiple ownership and
circumstances or objectives. These solutions may and marine environments.
24 24Minimum Medium Term
July 2018 – June 2028
Long Term
July 2028 – June 2048 30 Year Total
Targets
Medium term targets include Long term targets include an July 2018 – June 2048
an additional margin of 20% additional margin of 15%
Total for
Minimum Target Minimum target Minimum target
sub-region
The NPS-UDC requires
councils to set minimum
To be incorporated 21,500 30,500 52,000
into the Bay of Plenty Projected actual demand Projected actual demand Projected actual demand
targets for sufficient, feasible Regional Policy
development capacity for Statement
17,500 26,500 43,000
housing.
These targets must include an
Minimum Target Minimum Target Minimum target
additional margin of feasible
16,500 25,500 42,000
Tauranga City
development capacity above projected
demand of at least: To be incorporated into
the Tauranga City Plan Projected actual demand Projected actual demand Projected actual demand
• 20% in the short and medium 13,500 22,500 36,000
term, and
• 15% in the long term.
Western Bay of Plenty Minimum Target Minimum Target Minimum target
The SmartGrowth Housing and
5,000 5,000 10,000
District
Business Development Capacity
Assessment identifies that housing To be incorporated
demand over the next 30 years into the Western Bay Projected actual demand Projected actual demand Projected actual demand
is projected to be around 43,000 of Plenty District Plan 4,000 4,500 8,500
dwellings. The minimum targets,
including the additional margins
required by the NPS-UDC are shown
in the table right:
•
1
The medium term shown in the above table includes both the short and infrastructure to service that capacity is identified in a council Infrastructure
medium term time periods as defined in the NPS-UDC (3 years and 10 years Strategy. This Strategy
respectively). • Figures are rounded up to the nearest 500 then aggregated to provide the builds on the
• The numerical targets represent the equivalent number of new dwellings for sub-regional target. For more detail on specific projections of demand refer to SmartGrowth Housing
which development capacity is provided. the table on page 43 of the SmartGrowth Housing and Business Development
• For the medium term targets, the appropriate provision of development Capacity Assessment 2017 – noting those figures are from 2017-2047. and Business
capacity requires that it is feasible, zoned and either: • Urban expansion of Tauranga City will extend into the current Western Bay of Development
• serviced with development infrastructure, or Plenty District territorial area. Where this occurs and is reflected by a territorial Capacity Assessment available at
• the funding for required development infrastructure is identified in a boundary adjustment the new capacity will be considered to contribute to the
council Long Term Plan. Tauranga City target. smartgrowthbop.org.nz.
• For the long term targets, the appropriate provision of development capacity
must be feasible and identified in plans and strategies. The development
25Our Future
Development
Strategy
Te Wāheke
26Into the future, the sub-region will provide for urban growth in Ko te pae tawhiti whāia
two ways:
kia tata, ko te pae tata
Compact City
whakamaua kia tina
New development will happen within the existing urban area of Tauranga
City to support higher densities of housing and employment, predominantly Seek out distant horizons,
within and around town centres. This approach is outlined in the Draft
Tauranga Urban Strategy and is recognised as essential to provide for a and cherish those you
sustainable transport network; equitable access to housing, employment
and services; and support sustainable environmental outcomes. attain
New Growth Areas
Despite a renewed effort to incentivise intensification, rural land will still
need to be converted to new urban areas in specific locations as shown in
the map on the next page. These planned greenfield urban growth areas
will be required in the medium and long term.
The current SmartGrowth settlement pattern has already ‘locked in’ areas
to provide for at least the next ten years of growth. It is projected that
growth will occur mainly in the greenfield areas for at least the next ten
years, however at the same time implementation of the Tauranga Urban
Strategy will shift the balance of growth to redevelopment and infill,
starting with the Te Papa peninsula from the CBD to Greerton. Draft Tauranga Urban Strategy
A SUMMARY
Alongside the planned new greenfield areas over the next ten years, we also
need to decide where the longer term growth areas will be. This strategy
also outlines the programme of work that will identify future growth areas
into the long term. This work will form part of a review of the SmartGrowth
settlement pattern through to 2021. The majority of the areas shown
for investigation for possible long-term greenfield development were
highlighted for consideration in the SmartGrowth Strategy 2013.
The map on the next page illustrates the settlement pattern that forms the
basis of this Proposed Future Development Strategy. Appendices 2 and
Our long term approach to managing growth and change within Tauranga
3 provide a complete summary of the proposed work programme to give
effect to this settlement pattern in terms of new greenfield growth areas.
The Bay of Plenty Regional Policy Statement and Regionals Plans set the Refer to Appendix 5 for
region-wide framework for environmental protection under the Resource Environmental Constraints
Management Act 1991. Consideration of environmental constraints will be Maps. The Draft Tauranga Urban
an important first step in the investigation process. Strategy is available at
www.smartgrowthbop.org.nz
27Urban Growth
Areas
28Compact City – Successful implementation of the
Tauranga Urban
Tauranga Urban Strategy will require
collaboration with the community and
investment in centres to provide high
Strategy levels of amenity and vibrancy.
The SmartGrowth Strategy 2013 identified that we need to move towards a compact urban form within Tauranga City.
Tauranga City Council has recently prepared an opportunities around key centres. A review • No significant infrastructure constraints are
urban strategy which sets out the principles for of the City Living Zone provisions will also be evident in the short to medium term
enabling a greater proportion of Tauranga City’s undertaken to ensure there are no unintended • The area is largely resilient from natural hazard
growth to occur within the existing urban area. barriers to development in the areas surrounding risk, especially risk associated with sea level
The Draft Tauranga Urban Strategy proposes a the CBD. The Draft Tauranga Urban Strategy rise, groundwater, storm surge and tsunami.
centres-based urban form which will include areas is firstly proposing to investigate potential new
of residential intensification in and around town opportunities along the Te Papa peninsula – Into the long term, Council intends to find further
centres. This will enable more people to live within essentially the central part of the city from the opportunities to improve amenity and support
easy walking distance to efficient public transport, CBD through to Greerton. higher levels of housing development around
shops, community facilities, employment, and centres. Other centres will be investigated
public amenity. Tangata whenua see their marae Why Te Papa? following on from the initial focus on the Te Papa
and hapū communities, and the associated peninsula. There will be ongoing and significant
socio-cultural services (kohanga-rego, hauora, • Significant employment hubs are located engagement with communities where any new
papakainga, kaumatua housing, kura, sports along this corridor around the CBD, 11th Ave, opportunities are considered under the Tauranga
clubs etc) linking into the wider Tauranga Urban Tauranga Hospital/Gate Pa and Greerton Urban Strategy. The table on page 31 summarises
Strategy. • Frequent bus services run along this corridor the proposed work programme.
and these will become more frequent with There are also potential opportunities for
Successful implementation of the Tauranga implementation of the new Public Transport
Urban Strategy will require collaboration with the redevelopment around urban marae. Where there
network in early 2019 is further demand for housing in these locations,
community and investment in centres to provide
high levels of amenity and vibrancy. Areas with • Planning is underway for the delivery of there may be opportunities for tangata whenua
high amenity such as Mount Maunganui and infrastructure for bus lanes and bus priority to create more homes through new housing
the City Centre have had, and will continue to along Cameron Road as well as safe off road development at higher densities to replace
have faster rates of change compared to other cycle paths. existing homes. The Tauranga City Council will
centres. These two areas are already enabled for work in partnership with local tangata whenua to
• A number of primary, intermediate and explore these opportunities.
higher density development, although the City secondary schools as well as tertiary education
Living Zone surrounding the City Centre has had facilities are located along the corridor
slower uptake of development opportunities than
expected.
• Significant areas of concentrated social
Initially, the Tauranga City Plan will be changed to housing stock exist in common ownership, with The Draft Tauranga Urban
provide broad policy support for new development Strategy is available at
redevelopment interest expressed
www.smartgrowthbop.org.nz
29More terraced
houses within
Providing housing 5-10 minutes
walk
choices at a wide
range of price points,
typologies, and locations r Residential
te Ar
is necessary to meet the O u ea
needs of an increasingly te walk fr
u o
diverse population. in
ithin 5-10 m
m
(source: MBIE Cabinet Paper on
tow
Urban Growth Agenda, released 6
August 2018) Town
n cent
Centre
W
re
More mixed use
developments
in town centres
30
30Compact City Work Programme – Tauranga
Key Components/Description
City Council
City Plan - Objectives and Policies plan Greater policy support for developments that allow for more homes within the existing urban area in
change support of the Tauranga Urban Strategy.
Review current City Living Zone to ensure no unintended barriers to medium-density housing
City Plan - City Living Zone plan change
developments in the areas surrounding the CBD.
Short t Term
2018 -2021
Ensure resilience to the increasing pressures of water-based hazards management across the city,
Water-based hazards management plan
taking account of the impacts of climate change. This work will lead to changes to the City Plan and
change
infrastructure investment.
Identify opportunities to build on and improve the live/learn/work/play opportunities in this part
Te Papa Peninsula Spatial Framework of the city and find opportunities to enable more homes supported by amenity and infrastructure
improvements.
Focused master planning work with communities in priority areas identified through Te Papa
Area-based master planning and plan
Peninsula Spatial Framework. This will support development of more homes through changes to the
changes – Areas to be confirmed
City Plan and investment to create vibrant and connected neighbourhoods and centres.
City-wide implementation of Tauranga Urban This repeats the process for the Te Papa Peninsula as outlined above but in relation to other parts of
Medium-Long
2021-2048
Strategy the City.
Term
The City Plan will undergo a full review with notification by 2024. Work will commence on preparing
Full review of City Plan – notification by 2024 for this review in 2019. The review will provide a significant opportunity to implement the Tauranga
Urban Strategy across the wider city.
31New Growth
Areas - Greenfields
Councils prepare for new greenfield areas What happens when Tauranga City reaches
through planning where infrastructure, its boundaries?
housing and business activity will be
Tauranga City is already pushing at the territorial
located. The process of planning for new boundary shared with the Western Bay of Plenty
development areas in this way is referred to District. Where further growth is connecting with
as ‘structure planning’. Tauranga City’s urban area and will be serviced by
Tauranga City Council, the logical solution is for
This includes managing or avoiding any constraints the territorial boundary to be adjusted. This has
that apply to the land. Connecting new communities happened before with the development of Pyes Pa
to health, education, recreation and other West (The Lakes) and the Tauriko Business Estate. It
community services also needs to be considered. is currently proposed to occur again for the Tauriko
In larger growth areas there is the need to create West growth area. It is inevitable that as Tauranga
new town centres including the design of public City grows into the long term that further such
places and their interaction with private and civic boundary adjustments between the councils will be
developments. Town centres, provide access to required.
employment, shopping, personal services, community
infrastructure and other amenities become the ‘heart’ The creation of new papakāinga housing in rural
for the new communities. areas is also anticipated, and will accommodate
some growth. The desire to build on multiply-owned
New greenfield areas will become urban Māori land is high, however, there are challenges
environments that provide a mix of activity and for whanau securing finance to service debt, and
amenities. If residents do not have a wide variety the cost of infrastructure. Papakāinga housing
of services and amenities readily available in their has typically been very small in scale, and further
area, they will likely be less connected with their work needs to be done to increase the scale of
community and travel longer distances to access development. The development potential for housing
services and amenities. This increases pressure on on Māori land must be initiated and led by Māori.
the transport system and reduces health outcomes
for residents. The principal focus of the greenfields
work programme is to create well connected, quality
urban environments where residents can maximise
opportunities to live, learn, work and play. Further, See Appendix 2, while the
housing densities in greenfield areas are expected programme for investigation of
to rise in response to the changing demographics long-term greenfield areas is in
and housing preferences. In the future we expect to Appendix 3.
see a greater variety of housing types in greenfield
developments.
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